Analysis of Integration Policies and Public State-Endorsed ...

Working paper produced within the TOLERACE project
which allows foreigners to obtain permanent residence after four years if they meet
certain demands. Thus, ‗successful integration‘ is apparently measured by educational
performance, fast acquisition of Danish language skills, integration into the labour-
market, economic self-reliance and active participation in society. While those who
succeed in meeting these demands are rewarded with a permanent residence permit,
those who fail are penalised by a reduction in welfare payments, incentives or
pressures to resettle in their countries of origin, and diminished hopes for permanent
residence (Hedetoft, 2006a). In this way lines are drawn between ‗the good‘ and ‗the
bad‘ foreigners, between those who are able to meet the demands and those who are
not.
Certain elements of the Integration Act have been criticized for discriminating
and marginalizing foreigners. One of these elements is the ‗introduction allowance‘
(introduktionsydelse), which is granted to refugees and newly arrived immigrants for a
period of up to three years if they can‘t support themselves . The introduction
allowance is lower than the normal social welfare benefits and was introduced in 2002
to ensure faster inclusion on the labour-market (Integration Act § 25-31). At the same
time, a so called ‗start allowance‘ (starthjælp) was introduced applying to both Danes
and foreigners, who have not been living in Denmark for seven out of the last eight
years 36 . Since most Danes who have been out of the country for the above mentioned
period do not need it, the provision has been criticized for indirect discrimination
against ethnic minorities. Furthermore, researchers as well as human rights actors
have blamed the ‗start allowance‘ for causing further marginalization and for increasing
poverty levels among ethnic minorities in Denmark (Ejrnæs, 2001, ECRI, 2006,
Amnesty International, 2007).
2.2. An intensified focus on culture and immigrants as problems
Central to the Integration Act is the three year Integration Program 37 offered to newly
arrived refugees/immigrants. The program includes Danish language tuition and a
number of efforts intended to qualify the refugee/immigrant to find a job. Moreover, a
course on Danish society, history and culture has been added to the program due to
the requirement before was seven years. However, this requires that the foreigner meets certain demands
regarding e.g. work, Danish language skills, economic self support, active participation in society etc. (Law
on changes of the Aliens Act, law no. 572).
36 Act on an Active Social Policy § 11.
37 Refugees and immigrants reunited with a family member are offered an extensive Integration Program
while immigrants (including their families) coming to Denmark with a permit to work or study are offered a
less extensive program called Introduction course. Prior to the law reform of August 2010 the Integration
Act did not apply to immigrants coming to Denmark holding a working permit.
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